Student Transportation

The Okaloosa County School District operates an effective student transportation system. Improvements can be made that will increase the efficiency and the accountability of the system. Conclusion Okaloosa County School District s transportation department generally can be regarded as an effective provider of school-related transportation within the county. School administrators and staff are generally pleased with the performance of the transportation function on regular bus routes, exceptional student education bus routes, and school field trips. The relatively small number of bus breakdowns each year along with bus routes that have not significantly changed for many years contributes to the transportation function s effective performance. The problems with the district s transportation department can be categorized as primarily efficiencyrelated in nature with improvements possible in the funding of transportation. The efficiency of the transportation function can be improved through enhanced routing and reducing the number of spare buses. The transportation department s finances could be improved by seeking reimbursement for Medicaid expenses, not purchasing new buses for one year, and being fully compensated for field trips. Other transportation areas needing improvement include driver retention, computerization of the fleet maintenance function, and management accountability systems. During the course of this review, OPPAGA identified a number of district accomplishments in the student transportation, some of which are included in Exhibit 12-1 below. Exhibit 12-1 The District Has Had a Number of Notable Accomplishments in Student Transportation in the Last Three Years District transportation has begun a customer relations effort by logging in all phone calls with 20% of the calls being followed up for customer satisfaction. Of the 350 calls received in the first half of the 2001-2002 school year, 100 of the calls received a call-back with all but 3 of the callers expressing satisfaction with the service they received. At the direction of the transportation director, the route coordinators conducted an audit on all regular and ESE bus routes in the summer of 2001. Each of the 394 bus routes and 3,868 bus stops were checked for safety, time, address, and number of student riders. The audit resulted in a number of changes such as eliminating 239 bus stops and changing three bus stops for safety reasons. Twenty buses were re-routed to have shorter riding times. Source: Okaloosa County School District. Overview of Chapter Findings OPPAGA reviewed the district s student transportation using the Best Financial Management Practices adopted by the Commissioner of Education and associated indicators. OPPAGA used several methodologies to develop chapter conclusions and action plans. For instance, on-site interviews with OPPAGA 12-1

district-level managers were conducted and information was gathered from such sources as the district s student transportation activities policies and procedures. To receive additional input, OPPAGA interviewed district-level staff, route coordinators, bus drivers, shop foremen, principals, and teachers. Questions varied depending on the groups interviewed with their answers incorporated into this chapter where applicable. Fieldwork was concluded in July 2002. Any subsequent district action is not reported in this report but will be presented in a follow-up review. An overview of chapter findings is presented below. Student Transportation Services 1. In general, the student transportation office plans, reviews, and establishes bus routes and stops to provide efficient student transportation services. However, the efficiency of student transportation services can be improved through the elimination of bus riders who can safely walk to school, increasing the distances between bus stops coupled with increasing the area size served by a bus route, and automating the routing function. (Page 12-7) 2. The district does not ensure that all regular school bus routes and activity trips operate in accord with established routines and any unexpected contingencies affecting those operations are handled safely and promptly. (Page 12-16) 3. The district effectively and efficiently recruits the bus drivers and attendants it needs, but does not retain them. (Page 12-19) 4. The district trains, supervises, and assists bus drivers to enable them to meet bus driving standards and maintain acceptable student discipline on the bus. (Page 12-22) 5. The district does not document the need for specialized student transportation services in the individual education plans for exceptional students or seek Medicaid reimbursement for these services. (Page 12-23) 6. The district ensures that staff act promptly and appropriately in response to any accidents that occur. (Page 12-25) 7. The school district ensures that appropriate student behavior is maintained on the bus at all times. (Page 12-26) Student Transportation Functions 8. The school district has a process to ensure that a sufficient school bus fleet is acquired economically, but has too many spare buses. (Page 12-27) 9. The district provides prompt response for breakdowns and other unforeseen contingencies, but does not uniformly provide timely routine servicing for buses and other district vehicles. (Page 12-32) 10. The district ensures that fuel purchases are cost-effective and that school buses and other vehicles are efficiently supplied with fuel. (Page 12-35) 11. The district maintains facilities that are conveniently situated to provide sufficient and secure support for school transportation and other student transportation functions. (Page 12-36) 12. The district maintains an effective staffing level in the vehicle maintenance area and provides support for vehicle maintenance staff to develop their skills. (Page 12-37) 13. The district maintains an inventory of parts, supplies, and equipment needed to support student transportation functions that balances the concerns of immediate need and inventory costs. (Page 12-38) 12-2 OPPAGA

Managerial Oversight 14. The district does not provide appropriate technological and computer support for student transportation functions and operations. (Page 12-39) 15. The district has not established an accountability system for student transportation, and it does not regularly track and make public reports on its performance in comparison with established benchmarks. (Page 12-40) 16. The district coordinates long-term planning for student transportation but does not identify potential areas of cost savings. (Page 12-43) 17. The district monitors the fiscal condition of student transportation functions by regularly analyzing expenditures and reviewing them against the budget. (Page 12-44) 18. The district provides regular, accurate, and timely counts to the Florida Department of Education of the number of students transported as part of the Florida Education Finance Program. (Page 12-45) 19. The district has not reviewed the prospect for privatizing student transportation functions, as a whole or in part. (Page 12-45) 20. The district periodically reviews the organizational structure and staffing levels of the student transportation program to minimize administrative layers and processes. (Page 12-46) Fiscal Impact of Recommendations As seen in Exhibit 12-2, seven of this chapter s recommendations will have a direct fiscal impact on the transportation function. Cost reductions/full cost billing/increased state and federal revenues associated with these recommendations will result in a positive five-year fiscal impact of cost savings/increased revenues of $2,596,703 over five years with additional spending of $103,500. Exhibit 12-2 shows these recommendations. Exhibit 12-2 Nine Student Transportation Action Plan Recommendations Have Fiscal Impacts Recommendation Eliminating bus service to students that can safely walk to school can improve transportation efficiency. Increasing average bus occupancy (the average total number of students carried on all bus routes that a bus operates on) can improve transportation efficiency. Seeking reimbursement for Medicaid transportation it currently provided to some district students will reduce uncompensated transportation expenses. Reducing the number of spare buses held in inventory can reduce transportation expenses. Five Year Fiscal Impact The district can save between $504,150 and $1,008,305 over five years through elimination of routes and associated costs. Increasing the distance between bus stops to a minimum of one-half mile and increasing the length of bus routes to cover larger areas will increase average bus occupancy. If the district can increase the average bus occupancy from the current average bus occupancy from 67.65 students per bus to 74.25, the district would be able to have cost savings/increased funding over five years of $555,080 through increased state funding and the sale of surplus buses. The district can receive approximately $44,000 over five years from Medicaid for transportation provided to some district students. Selling excess surplus buses is estimated to bring in $34,000 to the district. OPPAGA 12-3

Recommendation Improving security for buses compounded at the Niceville bus facility can be accomplished through additional fencing. Not purchasing buses for one year will still allow the district to safely operate its transportation system. Obtaining and implementing an automated school transportation management information system that interfaces with the district s existing information systems will provide necessary information to district transportation staff. Source: OPPAGA and Okaloosa County School District. Five Year Fiscal Impact The cost of additional fencing and striping to improve security for buses compounded at the Niceville bus facility is estimated to cost $3,500. Not purchasing buses in Fiscal Year 2002-03 school year while retaining sufficient spare buses can reduce transportation expenses by $955,318 in Fiscal Year 2002-03. The district estimates that the acquisition, set-up, and training costs of an automated vehicle maintenance management information system would cost the district $105,000. Background Stretching from the Alabama state line to the Gulf of Mexico, Okaloosa County covers 936 square miles in the western Florida Panhandle area. The northern half of the county is primarily rural farming county with Crestview, the county seat, being the only substantial population center in the region. An affordable housing market is the reason why Crestview leads the county in growth rate. The remaining half of the county is split between the largely unpopulated Eglin Air Force base property and the urban areas along the coast. Eglin Air Force Base s weapons testing ranges and bases cover about 425 square miles in an east-west band in the center of the county. Fort Walton Beach, Niceville, Destin, Valparaiso, and other smaller cities and towns stretch from the southern boundary of Eglin Air Force Base to Okaloosa Island and the Gulf of Mexico. Eglin Air Force Base separates the northern part of the county from the southern part of the county. This geographic separation presents significant challenges to the school district s transportation department. To help meet this challenge, the Okaloosa County School District has organized its student transportation operations by geographic area. As seen in Exhibit 12-3, the transportation department has established regional transportation facilities in Fort Walton Beach, Niceville, and Crestview. These facilities provide for the storage and maintenance of buses as well as office and meeting spaces for operations staff. 12-4 OPPAGA

Exhibit 12-3 Student Transportation Functions Are Organized by Geographic Areas Superintendent of Schools Assistant Superintendent North Transportation Department Program Director Operations Section District Secretaries Maintenance Section Route Coordinator South Fort Walton Beach Route Coordinator Central Niceville Route Coordinator North Crestview Bus Stop South Fort Walton Beach Bus Stop Central Niceville Bus Stop North Crestview District Secretary District Secretary District Secretary Shop Foreman / Parts Shop Foreman Shop Foreman Bus Drivers and Aides Bus Drivers and Aides Bus Drivers and Aides District Secretary District Secretary District Secretary Commercial Drivers License Trainer Source: Okaloosa County School District. Commercial Drivers License Trainer Mechanics and Laborers Mechanics Mechanics and Laborers During the 2000-01 school year, the district provided school bus service to 13,970 of its 30,358 students at 40 school centers throughout the county. Among those being served were 822 students in exceptional education programs who require special transportation arrangements because of disabilities or the need for specialized classes. District school buses were also used for approximately 2,687 extracurricular field trips during the 2000-01 year and for transportation for other community groups and organizations. There were 239 school buses in service (including spares) on 558 school bus routes. Most buses operate on three to four routes each morning and afternoon (providing transportation to an elementary school, a middle school, and to a high school) to accommodate staggered school times. Such staggered school times are intended to improve the efficiency of buses. Exhibit 12-4 presents selected student transportation data for the Okaloosa County School District and four peer districts in the state for the 2000-01 school year. The conclusions below can be drawn from this data. It is significantly less expensive to transport students in Okaloosa County on a total per student basis than in its peer counties. Total transportation expenditures (including reported bus purchases) per student for Okaloosa County was $536 per student with other peer counties having per student expenditures ranging from $654 to $829. Although Okaloosa drives significantly fewer miles per year than its peers (about 2 million miles less per year than Collier County, its highest peer county), the cost of student transportation per mile ($2.39) in Okaloosa is significantly higher than in all peer counties except one. OPPAGA 12-5

The Okaloosa County School District is efficient in the use of local educational funding for student transportation. The state funds a greater percentage (68.36%) of Okaloosa s student transportation expenditures than in its peer districts (state funding of peer counties ranges from 44.27% to 63.14%). Exhibit 12-4 Comparative Student Transportation Data for Okaloosa County and Four Peer Districts Measure Okaloosa Alachua Clay Collier Leon Peer Average Square Miles 936 902 592 1,994 676 1,041 Number of Students Enrolled 30,358 29,673 28,115 34,199 32,048 31,056 Number of Students Transported 13,970 15,120 13,464 16,161 11,298 14,011 Percentage of Students Transported 46.02% 50.96% 47.89% 47.25% 35.25% 45.34% Number of Buses in Daily Service 207 180 180 233 166 190 Number of Miles Driven 3,167,534 4,913,208 4,063,597 4,980,261 4,056,579 4,503,411 Student Transportation Expenditures $7,563,951 $10,479,891 $8,841,288 $13,821,033 $8,558,583 $10,425,199 Student Transportation Expenditures per Annual Mile $2.39 $2.13 $2.18 $2.78 $2.11 $2.30 Student Transportation Expenditures as a Percentage of Total District Expenditures 3.79% 5.81% 5.67% 5.9% 3.61% 5.09% Average Bus Occupancy 68 84 75 69 68 74 Percentage State Funding 68.36% 60.51% 63.14% 44.27% 51.28% 54.8% Percentage Local Funding 31.64% 39.49% 36.86% 55.73% 48.72% 45.2% Total Transportation Expenditures (including reported bus purchases) per Student $536 $677 $654 $829 $735 $723.75 Source: Draft Q-Links: Florida District Transportation Profiles, July 2002 for School Year 2000-01, Florida Department of Education. 12-6 OPPAGA

Student Transportation Services 1 In general, the student transportation office plans, reviews, and establishes bus routes and stops to provide efficient student transportation services. However, the efficiency of student transportation services can be improved through the elimination of bus riders who can safely walk to school, increasing the distances between bus stops coupled with increasing the area size served by a bus route, and automating the routing function. Routing coordinators are responsible for the day-to-day routing functions of the school district The district manually creates and updates bus routes to provide effective student transportation. The responsibility for creating and updating the bus routes falls on the route coordinators, which are located in each of the three regional transportation facilities (Fort Walton Beach, Niceville, and Crestview). With little student population growth in the school district, the experienced route coordinators have to make only minor modifications to regular routes during the school year. These modifications include having to move a bus stop to correct a problem or changing a bus route to eliminate overcrowding. The majority of changes to bus routes within the district occur in the exceptional student education (ESE) routes. Changes in these routes occur in response to these students moving to different addresses or receive specialized educational services at different locations. Staggered school start times help improve bus efficiency. As the result of a transportation analysis conducted in 1995, the district found that they could increase efficiency and save additional money by spreading out school bus schedules. The district now operates under a four-tier bell schedule in which most buses pick up and drop off students at two elementary schools, one middle school, and one high school. The route coordinators began auditing all regular and ESE bus routes in the summer of 2001 at the direction of the transportation director. The route audit included checking each of the 394 bus routes and 3,868 bus stops for safety, time, address, and number of student riders. The route audit resulted in a number of changes such as eliminating 239 bus stops and changing three bus stops for safety reasons. Twenty buses were re-routed to have shorter riding times. Few (144) students now have bus travel times in excess of district school board time recommendations. 1 One group of these students (60) attends the Baker and Laurel Hill Schools (schools that serve kindergarten through twelfth grade), which are located in rural areas of northern Okaloosa County. Another group of these students (36 students) are exceptional student education (ESE) students who live in the Crestview region and need transportation to the Silver Sands School (in the Fort Walton region) and Valparaiso Elementary (in the Niceville region) for services only available in those schools. The remaining group of students (48 students) includes students living in the Fort Walton region who are on buses for over an hour because of where their homes are and where they are attending school. There is a recent exception to these efforts to improve student transportation efficiency. The Okaloosa County School Board recently voted in favor of transporting students who live in the Destin area to 1 Section 12-2 (I) of the Okaloosa County School Board Policies requires bus travel each morning and afternoon not to exceed fifty (50) minutes for elementary students and sixty (60) minutes for secondary students, when practicable. OPPAGA 12-7

Niceville High School via shuttle bus rather than having them go to Fort Walton Beach High School where they currently attend. The reason given for offering this transportation service is to keep the students (estimated to be as many as 150 students) from leaving the district to attend the new South Walton High School. The school board accepted a recommendation of the school superintendent in February 2002 to have Niceville High school pay for all transportation costs exceeding state school bus funding. Based on Fiscal Year 2000-01 data, the state pays $345 of the average cost of $536 per transported student leaving an average of $191 per student to be paid for with local school funds. With 25 students applying for such transportation as of May 2002, Niceville High School will have to spend $4,775 in locally generated funds on transportation in Fiscal Year 2002. The district s decision to provide this additional transportation is based on its customer service values. In addition, the district believes that the $20,211 to $26,958 in funding generated by three or four students ($6,737 per student) who would otherwise leave the district is sufficient to offset the costs of the shuttle bus. District staff estimates the additional expenses of operating a shuttle bus to be $10,000 to $15,000 per year. The school district should periodically re-evaluate this transportation decision by comparing the cost of additional transportation and educational services provided for these students to possible cost savings due to reduction in demand for teachers, facilities, etc. by not providing this transportation. Requiring students who can safely walk to school to do so can improve student transportation efficiency The Okaloosa County School District transports a large number of students who do not receive any state funding for transportation because they live within two miles of their assigned school and do not require specialized transportation. In school year 2000-01, the Okaloosa County School District transported 3,040 of these students (18% of all district students). This is double the percentage of these students most peer districts transport (see Exhibit 12-5). The Okaloosa County School District has the seventh highest percentage of student riders that do not receive state transportation funds of Florida s 67 counties. Exhibit 12-5 Okaloosa County Provides Transportation to a Large Number Of Students That Do Not Receive State Transportation Funds Okaloosa Alachua Clay Collier Leon Total Number Riding Bus 13,970 15,120 13,464 16,161 11,298 Number of Unfunded Students Riding Bus 3,040 1,733 1,320 1,028 804 Unfunded Students as a Percentage of All Bus Riders 17.87% 10.28% 8.93% 5.98% 6.65% Source: Draft Q-Links: Florida District Transportation Profiles, July 2001 for School Year 2000-01, Florida Department of Education. The Okaloosa County School Board has established policies regulating the transportation of students. District policy 12-2 (B) and (C) states: (B) As of July 1, 1973, a student transported during a school term is in membership and earns a state transportation allocation only if he/she attends a course or class offered for the purpose of providing credit or promotion or a special program for exceptional children, vocational-technical, or adult general education and meets at least one of the following conditions: (1) Lives two (2) miles or more from school; or (2) Is physically handicapped as defined by State Board Regulation 6A-3.10; or (3) Is transported from one school center to another for vocational or exceptional classes. (C) All elementary student who live more than one (1) mile from school will be transported. 12-8 OPPAGA

According to district staff, the Okaloosa County School District provided free student transportation to all students living more than a mile from school until approximately five years ago. At that time, the District changed its policy to no longer transport middle and high school students unless they live two or more miles from school, are physically handicapped, or need to be transported from one school center to another for vocational or exceptional classes. A large number of the Okaloosa bus riders who do not receive state transportation funding are elementary school students who live between one and two miles of their schools. According to district staff, the reason the district transports so many non-state funded elementary students is that many of these students would otherwise be walking under hazardous conditions. As an example, staff said that children living in rural areas of the county would have to walk along country roads without sidewalks, while children living in urban areas would have to cross multi-lane highways. However, state law provides transportation funding for elementary students living within two miles of their schools if the routes the children would be walking contain hazardous conditions as defined by state guidelines. 2 These guidelines define hazardous walking conditions as those in which: children must walk along a busy road that does not have an adjacent, four-foot-wide walkable surface; children must walk along a busy, uncurbed road that has a posted speed limit of 55 miles per hour and does not have an adjacent, four-foot wide, walkable surface that is set back from the road by at least three feet; or 3 children must cross a busy road without a traffic signal or crossing guard. 4 To receive state funds for transporting elementary students due to hazardous walking conditions, the school district, sheriff s office, local safety council, or local governments would have to report the condition to the Department of Education. Upon accepting the report, the department would make the district eligible to receive state funding for these students. According to DOE staff, the department has never discouraged school districts from designating locations that meet the state guidelines as hazardous or from claiming transportation funding for students who would otherwise be walking through those areas. According to these staff, providing transportation funds to ensure the safety of hazardous walking students is just as important as providing funds for students who do not live within walking distance of their schools. The district claimed hazardous walking conditions for 1,126 students in school year 2000-01. When the district does not apply for state funds for transporting elementary students who would otherwise face hazardous conditions when walking to schools, it has to use funds it could otherwise spend on education programs to pay the entire cost of transporting these students. The district could save about $201,661 per year if it would eliminate its non-state funded riders by requiring students that do not encounter hazardous walking conditions to walk to school or otherwise arrange for their own transportation. 5 If it merely reduced the percentage of non-state funded students it transports to the lowest percentage of its peers, it could save approximately two-thirds that amount or $134,440 per year. 2 Section 234.021, F.S. This section currently provides that a representative of the school board, county sheriff, local safety council, or local government entity can also declare that an area contains hazardous walking conditions based on their inspection of the area even thought the area does not meet state guidelines. This provision was deleted by Ch. 2002-387, Laws of Florida, effective January 7, 2003. 3 Busy roads are defined as roads other than those that are located in residential areas with little traffic or posted speed limits of 30 miles per hour or located in non-residential areas with traffic volumes of less that 180 vehicles per hour, per direction, during the times students would walk to school. 4 A signal is considered necessary when the volume of traffic exceeds 360 vehicles an hour per direction; a crossing guard is considered necessary when the volume of traffic exceeds 4,000 vehicles per hour. 5 This estimate was provided by transportation program staff. According to their analysis, the district could eliminate 61 bus routes and two or three buses by eliminating courtesy. In addition to saving money, this would help relieve a district bus driver shortage. OPPAGA 12-9

Exhibit 12-6 Discontinuing Bus Service to Students Who Could Safely Walk to School Could Save the District Up To $1,008,305 in the Next Five Years Fiscal Year 2003-04 2004-05 2005-06 2006-07 2007-08 Annual Cost Savings $201,661 $201,661 $201,661 $201,661 $201,661 Cumulative Cost Savings $201,661 $403,322 $604,983 $806,644 $1,008,305 Source: Okaloosa County School District Staff. Increasing average bus occupancy can also improve student transportation efficiency One measure of transportation efficiency is average bus occupancy. Average bus occupancy is determined by taking the number of students transported and dividing by the number of buses on scheduled bus routes. Okaloosa County s average bus occupancy rate in school year 2000-01 was 67.65 students per bus. If a known number of students can be appropriately served using few buses, the average bus occupancy rate and the overall efficiency of the student transportation system will be improved. Given that not all buses in the district are operated at capacity, the key item that limits bus occupancy is time. As stated earlier, the Okaloosa school district has a policy of having elementary student bus routes lasting no more than 50 minutes with secondary student bus routes lasting no more than 60 minutes. Working within this policy, the district can improve its average bus occupancy rate by increasing the distance between bus stops to a minimum of one-half (1/2) mile which reduces the time necessary to pick up a given number of students by and increasing the area covered bus routes. Bus stops in the Okaloosa County School District are frequently placed close together. Bus drivers have to perform a number of functions from the time they leave one bus stop to the time they are ready to leave the next bus stop. These functions include checking to see if all students are properly seated in the bus; retracting electrically operated bus stop signs mounted on arms on the side of the bus and front bumper safety arm; accelerating the bus to the posted speed limit; starting decelerate the bus; deploying the warning lights indicating that the bus is preparing to stop; stopping the bus and deploying the electrically operated bus stop signs and front bumper safety arm; opening the front bus door; and waiting for students (frequently ranging from one to six students) to get on the bus and seat themselves. As seen in the example bus route contained in Exhibit 12-7, bus drivers frequently have one minute to perform these tasks per bus stop. Consequently, the distances between bus stops are not far. Current routes frequently have stops less than one-quarter (¼) mile apart. Current board policy is that bus stops should not be established nearer than one-quarter mile apart. 12-10 OPPAGA

Exhibit 12-7 Examples of Bus Routes with Frequent Bus Stops Number of Bus Stop Number AM Time Expected students at stop Distance From Previous Stop in miles Description of Stop Bus number: 95-1; School: Fort Walton Beach High School; Bus capacity: 65 passenger 1 6:13 2 NA 220 Highway 98 2 6:15 7.9 Benning Drive and Azalea 2 6:16 5.2 Benning Drive and Maltezos 3 6:17 6 <.1 1 Benning Drive and Kelly 4 6:19 2 <.1 1 Benning Drive and Driftwood Lane 5 6:21 5 <.1 1 Siebert Ave and Kelly 6 6:23 6.4 Siebert Ave and Forest 7 6:45 NA 8.7 Fort Walton Beach High School 33 total student riders Bus: 91-7; School: Crestview High School; Bus capacity: 65 passenger 1 6:30 5 NA First Avenue and Brackin Street 2 6:31 3.2 First Avenue and Camelia Place 3 6:32 10.1 First Avenue and Lea Place 4 6:33 2 <.1 1 1706 First Avenue 5 6:34 1 <.1 1 1851 First Avenue 6 6:34 1.2 1991 First Avenue 7 6:35 1.1 Valley Road and Forest Court 8 6:36 1.5 104 Palmetto Drive 9 6:37 5.1 126 Palmetto Drive 10 6:39 1.1 147 Palmetto Drive 11 6:41 3 <.1 1 151 Palmetto Drive 12 6:45 2.4 107 Tyner Drive 13 6:47 3.1 Sikes Drive and Valley Road 14 6:50 2.6 704 Valley Road 15 6:55 2 UNK 2 508 Hyde Park 16 6:56 1 UNK 2 600 Hyde Park 17 7:00 NA UNK 2 Unload at Crestview High School 43 total student riders 1 Yahoo! Maps calculates this distance as being 0.0 miles. However, the Yahoo! Map does show a small distance between the stops. Therefore, we have listed the mileage as less than one-tenth mile (<.1 miles). 2 Hyde Road is not currently shown on Yahoo! Maps. Source: Okaloosa County School District and Yahoo! Maps. Distances between bus stops can have significant impact on student transportation operations. Ideally, the fewer bus stops that a bus has to make to pick up students on a given route, the less time it should take to complete. Frequent stops and subsequent starts can create more wear on bus brakes and engines and increase fuel consumption consequently increasing bus repair and fuel costs. Short distances between bus stops also have the potential to have increase traffic backed up behind buses while pick-ups and drop-offs are made. Increasing the distances between bus stops can improve the efficiency and safety of student transportation. As seen above in Exhibit 12-7, a number of bus stops are less than one-tenth of a mile OPPAGA 12-11

apart despite board policy requiring bus stops to be at least one-quarter of a mile apart. A change in policy and practice to increase the distance between bus stops would allow for more students to be picked up using fewer bus stops, increases the time available for the bus to service a larger area, and thus increases bus occupancy rates. 6 For example, increasing the distance between bus stops for the current board policy of one-quarter mile to one-half mile would result in students only having to walk at the most an additional 220 yards. 7 Staff at the Okaloosa County Sheriff s Office believe that increasing the distance between bus stops should reduce traffic congestion behind buses stopped at bus stops and thus increase student safety. Buses servicing larger areas should also improve bus occupancy rates. In general, larger areas contain more students than smaller areas. With time savings resulting from increased distances between bus stops, it is reasonable to expand the areas served by bus routes. The expanded bus routes should not exceed current board policy governing maximum route times (50 minutes for elementary school students and 60 minutes for middle and high school students). Expanded route service areas should allow a larger number of students to be transported on each bus and thus increase bus occupancy rates. Increasing the distance between bus stops and expanding service areas has the potential to reduce Okaloosa school transportation costs, increase state funds available to the district, reduce traffic congestion, and increase student safety. An increase in bus occupancy rates from 67.65 per bus to 74.25 would allow the district to increase annual state transportation funding by $103,416, reduce the number of buses required for daily bus runs by 18, and allow the district to reduce the size of its fleet by 19 (the 18 buses on daily bus runs and 1 spare). It is estimated that the district could sell these buses for at least $38,000. The reduction in the number of daily bus routes will reduce the number of bus drivers and bus inspections needed to provide district student transportation. Exhibit 12-8 Increasing Bus Occupancy by Changing Bus Stop Locations and Lengthening Bus Routes Could Save the District $555,080 in the Next Five Years Fiscal Year 2002-03 2003-04 2004-05 2005-06 2006-07 Sale of Surplus Buses $38,000 Annual State Funds Increase $103,416 $103,416 $103,416 $103,416 $103,416 Cumulative Cost Savings/Funds increase $141,416 $244,832 $348,248 $451,664 $555,080 Source: Okaloosa County School District Staff. The district could benefit from computerizing the routing function As previously stated, the district manually creates and updates bus routes to provide effective student transportation. The district had previously attempted to computerize the routing function in the Crestview region using a program produced by ECOTRAN. According to district staff, the routing program was very time-consuming to set-up and difficult for the route coordinator to use. Beginning in the spring of 2001, the district was unable to obtain any updates or assistance from ECOTRAN on the program. District staff were informed that this was due to ECOTRAN declaring bankruptcy. 6 We would expect the school board to allow the transportation department to make exceptions to one-half mile in-between bus stops policy to prevent bus stops from being in unsafe locations or having bus stops that would require students to walk in hazardous conditions described in s. 234.021, F.S. 7 Currently, with bus stops one-quarter miles apart, a student living halfway in-between the bus stops would have to walk 220 yards to a bus stop. If the minimum distance between bus stops is increased from one-quarter to one-half mile, the student living halfway between the bus stops would have to walk an additional 220 yards (440 yards total). 12-12 OPPAGA

The use of computerized bus routing programs can help improve district bus operations by reducing the amount of time necessary to change bus routes. One county school district (Lake) estimates that computerized routing would decrease the time spent on manual routing by 35% to 40%. While Okaloosa County is not experiencing the growth that Lake County is, Okaloosa County route coordinators frequently need to change exceptional student education (ESE) routes due to these students moving to different addresses or receiving specialized educational services at different locations. Decreasing the time route coordinators spent manually preparing routes will allow them more time for other responsibilities, such as driver supervision. The Lake County School District is purchasing a computerized bus routing system (Plan Ware) in the current school year at a cost of $62,000 to improve the efficiency of bus routing. The Okaloosa School District chief information officer has stated that the district is continuing to search for a computer program that will automate the routing function that will be relatively quick to set-up and be easy for route coordinators to use. He estimates that the cost of acquiring the EDULOG bus routing system along with necessary hardware, systems maintenance, and training of staff would cost in excess of $100,000. Such an investment in bus routing programs should be justified using a return-on-investment (ROI) analysis to ensure that the savings from using such a program are sufficiently high (a positive ROI) to justify the cost of obtaining and implementing the selected bus routing program. Recommendations We recommend that the district periodically re-evaluate its decision to provide free shuttle transportation to Fort Walton Beach High School students living in the Destin area who wish to attend Niceville High School. This re-evaluation should include comparisons of the cost of additional transportation and educational services provided for these students to possible cost savings due to reduction in demand for teachers, facilities operational costs used to provide teachers, facilities, and other operating cost reductions, etc. by not providing this transportation. This analysis should be used to guide the school board in deciding if providing shuttle transportation is to be continued. We recommend that the district school board establish and implement a policy to begin in school year 2003-2004 to eliminate bus service riders to students who live within two miles from their assigned school and can safely walk to school. By reducing the number of students it transports who are not eligible for state funding, the district can save up to $201,661 annually. We also recommend that the district school board increase bus occupancy by establishing and implementing a policy to require bus stops to be placed at least one half (1/2) mile apart when safety is not an issue. The district should then increase the areas served by bus routes in order to increase bus occupancy rates. This recommendation has the potential to reduce student transportation costs, increase state funds available to the district, and reduce traffic congestion. We estimate that the Okaloosa County School District could realize $38,000 from the sale of surplus buses with an additional $103,416 each year in state revenue by implementing this recommendation. We recommend that the district evaluate bus routing software packages that will improve the efficiency of bus routing. This evaluation should include would an analysis of the rate-ofreturn (ROI) of each selected software package to ensure positive returns on the investment to justify the cost of obtaining and implementing the selected bus routing program. This routing software would complement but not be a part of a school transportation management information system discussed in Section 9 of this chapter (starting on page 12-32). Action Plan 12-1 provides the steps needed to implement these recommendations. OPPAGA 12-13

Action Plan 12-1 Analyze the Decision to Provide Free Shuttle Bus Transportation for Destin-Area Students Zoned Attending Niceville High School Strategy Conduct periodic re-evaluation of the school board s decision to provide free shuttle transportation to Fort Walton Beach High School students living in the Destin area who wish to attend Niceville High School. This analysis should be used to guide the school board in deciding if providing shuttle transportation is to be continued. Action Needed Step 1: The district performs a periodic re-evaluation of the decision to provide free shuttle transportation to Fort Walton Beach High School students living in the Destin area who wish to attend Niceville High School. This re-evaluation should include comparisons of the cost of additional transportation and educational services provided for these students to possible cost savings due to reduction in demand for teachers, facilities operational costs used to provide teachers, facilities, and other operating cost reductions, etc. by not providing this transportation. Who Is Responsible Time Frame Fiscal Impact Step 2: The superintendent would present the re-evaluations to the school board and the public. If the analysis shows that providing this transportation is in the best interests of the district, then no further actions would be taken. If the analysis shows that providing this transportation is not in the best interests of the district, then the superintendent will recommend and the board approves changing the board policy to eliminate free bus shuttle transportation of these students. Superintendent, school board, district staff as assigned by the superintendent. Initial re-evaluation to be completed by July 2003, and by June of each other subsequent year; superintendent to present the re-evaluation to board with school board approve change in policy if analysis indicates such is in best interest of district by August 2003, and by August in each other subsequent year. Existing district staff can perform the study. Eliminating Non-state Funded Bus Riders Strategy Eliminate the bus transportation of students who live within two miles of their school and can safely walk to school. Action Needed Step 1: The transportation department performs a comprehensive study of the impact of eliminating non-state funded bus riders in the county who can safely walk to school. This study would include overall impact on the student transportation system including number of buses and drivers needed, additional areas determined to be hazardous walking areas, certification of students eligible for hazardous walking conditions funding, savings to the district, and areas where continued school transportation for non-state funded bus riders is recommended due to hazardous walking conditions. Step 2: The superintendent would present the report to the school board and recommend changing the board policy to eliminate the transportation of nonstate funded bus riders who can safely walk to school. Step 3: School board affirmatively votes for a change in board policy to prohibit the transportation of all students that can safely walk to school and who live within two miles of their assigned school. Step 4: Step 5: Transportation department make necessary changes to routes in compliance with changed board policy. Transportation department continue to actively coordinate with local governments and law enforcement agencies on way to improve student walking conditions such as crosswalks and crossing guards. 12-14 OPPAGA

Who Is Responsible Time Frame Fiscal Impact Transportation program manager, superintendent, school board, route coordinators Study to be completed by July 2003; Superintendent to present study to board and school board approve change in policy by July 2003; routing coordinators to revise bus routes August 2003; on-going coordination with local governments and law enforcement agencies on ways to improve student walking conditions Existing transportation resources can do the study; cost savings are estimated to be between $134,440 and $201,661 annually. Extend Distances Between Bus Stops and Increase Areas Serviced by Bus Routes Strategy Extend the minimum distances between bus stops from the present one-quarter mile to one-half mile when safety is not an issue and increase the area served by individual bus routes. Action Needed Step 1: The transportation department performs a comprehensive study of the impact of extending the minimum distance between bus stops from one-quarter to one-half mile. This study would include overall impact on the student transportation system including number of buses needed, drivers needed, savings to the district, and areas where increasing the distance between bus stops is not recommended due to hazardous walking conditions. Step 2: The superintendent would present the report to the school board and recommend changing the board policy to extend the minimum distance between bus stops from one-quarter to one-half mile. Step 3: School board affirmatively votes for a change in board policy to extend the minimum distance between bus stops from ¼ to ½ mile. Step 4: Transportation department make necessary changes to routes in compliance with changed board policy. Step 5: Using time saved from extending the distance between bus stops, the transportation department increases the areas serviced by individual bus routes to improve bus occupancy. Who Is Responsible Time Frame Fiscal Impact Transportation program manager, superintendent, school board, route coordinators Study to be completed by July 2003; Superintendent to present study to board and school board approve change in policy with routing coordinators to revise bus routes effective for the 2003-04 school year. Existing transportation resources can do the study; an annual increase in state funding due to increased bus occupancy is estimated to be $103,416. Acquire Routing Software Strategy Improve the efficiency of the routing process using automated bus routing software. OPPAGA 12-15

Action Needed Step 1: The district s chief information officer and transportation director evaluate bus routing software packages that will improve the efficiency of bus routing. This evaluation should include would an analysis of the rate-of-return (ROI) of each selected software package to ensure positive returns on the investment to justify the cost of obtaining and implementing the selected bus routing program. The costs of such a system need to include factors such as price, reliability, hardware needed, and training costs. Using this evaluation, the chief information officer and transportation director will rank order the software and recommend purchase of the highest ranked software package meeting the needs of the district if the software package has a sufficiently high ROI. The evaluation and recommendation would be presented to the superintendent. Step 2: The superintendent would present the evaluation and recommendation to the school board for purchasing authority (if recommended). Step 3: If recommended, the school board affirmatively votes in favor of giving the district authority for the purchase of the highest ranked software. The software should be purchased using capital item funds. Step 4: School district purchases the software with the district s management information systems department installing the software at the route coordinator s computer terminals and providing necessary training. Step 5: The software will be used to design the district s bus routes. Who Is Responsible Time Frame Fiscal Impact Source: OPPAGA. Chief information officer, transportation program manager, superintendent, school board, district purchasing staff, route coordinators Evaluation to be completed by January 2003; superintendent to present study to board and school board approve purchase of routing software by February 2003; purchasing staff to purchase approved routing software by July 2003; route coordinators to implement computerized route planning as soon as possible after installation of computerized routing software. The above study will determine the fiscal impact to the district; the study can be done by existing district resources. 2 The district does not ensure that all regular school bus routes and activity trips operate in accord with established routines and any unexpected contingencies affecting those operations are handled safely and promptly. Bus routes in Okaloosa County generally function with few problems. The district has procedures to ensure that substitute bus drivers can operate the bus route if the primary driver is unable to operate the route. Bus overcrowding is infrequent and usually occurs only at the beginning of the school year. Bus routes are scheduled to minimize the number of students that have to travel on buses for times in excess of school board recommendations. Bus breakdowns are rare. One problem is the transportation department is not being reimbursed by schools for all costs associated with school field trip transportation. With few exceptions, regular school bus routes are operated with few reported problems The district has effective procedures to handle incidences where the regular driver is unable to perform their assigned routes. The master contract between the bus driver s union and the school district requires 12-16 OPPAGA